International Civil Aviation Organization Organisation de l aviation civile internationale Organización de Aviación Civil Internacional Ìåæäóíàðîäíàÿ îðãàíèçàöèÿ ãðàæäàíñêîé àâèàöèè Tel.: +1 (514) 954-8219 ext. 5821 Ref.: AN 12/51-07/74 7 December 2007 Subject: Proposal for the amendment of Annex 1, Annex 6, Parts I and III, Annex 8, Annex 11, Annex 13 and Annex 14, Volume I, to harmonize and extend provisions relating to safety management Action required: Comments to reach Montréal by 31 March 2008 Sir/Madam, 1. I have the honour to inform you that the Air Navigation Commission, at the fourth meeting of its 176th Session held on 25 October 2007, carried out a preliminary review of a proposal for the amendment of Annex 1 Personnel Licensing, Annex 6 Operation of Aircraft, Part I International Commercial Air Transport Aeroplanes and Part III International Operations Helicopters, Annex 8 Airworthiness of Aircraft, Annex 11 Air Traffic Services, Annex 13 Aircraft Accident and Incident Investigation and Annex 14 Aerodromes, Volume I Aerodrome Design and Operations, to harmonize and extend provisions relating to safety management. The Commission reviewed the proposed amendments and authorized their transmission to Contracting States and selected international organizations for comments. The proposed amendments are in Attachments A, B, C, D, E and F, respectively. 2. The proposal is a continuation of the harmonization of provisions relating to safety management in Annex 6, Parts I and III, Annex 11, and Annex 14, Volume I, initiated in 2005. In order to reinforce the safety management systems concept, it is also proposed that it be extended to Annexes 1, 8, and 13. The proposal centres around the introduction of two frameworks, one for the implementation and maintenance of a State s safety programme, the other for the implementation and maintenance of a service provider s safety management system (SMS). It also includes editorial/alignment amendments to the Annexes under consideration. 999 University Street Montréal, Quebec Canada H3C 5H7 Tel.: (514) 954-8219 Fax: (514) 954-6077 E-mail: icaohq@icao.int Sitatex: YULCAYA
- 2-3. With regard to Annex 1, the proposal addresses the medical assessment of licence holders and the approval of training organizations. Regarding the medical assessment of licence holders, the amendment proposes the incorporation of principles of safety management and a risk management approach to the medical assessment of licence applicants. With regard to the approval of training organizations, the proposal introduces the requirement that an approved training organization that is exposed to activities involving operational safety risks (activities conducted in an operational environment, such as flight training) implements a safety management system acceptable to the State. 4. With regard to Annex 6, Part III, the proposal introduces the requirement for helicopter maintenance organizations to implement a safety management system acceptable to the State. This is consistent with the objective of maintaining Annex 6, Parts I and III as closely aligned as appropriate. 5. With regard to Annex 8, the intent of the proposal is, beyond the harmonization of Annex 8, Part II with existing safety management requirements in other Annexes, to provide a platform to develop the necessary guidance material as part of future work of ICAO. 6. With regard to Annex 13, the proposal introduces the responsibility of accident and incident investigation as an element of the State s safety programme. The proposal also strengthens existing safety management provisions in Chapter 8 Accident Prevention Measures, and aligns the provisions with the State s safety programme. 7. The proposal includes an appendix describing a framework for a service provider s SMS, to be included in Annexes 1, 6, Parts I and III, 8, 11 and 14, Volume I. The framework aims at achieving consensus regarding standardization of SMS, by providing a principled guide for the implementation of SMS by service providers, as well as to develop guidance on SMS regulation by ICAO and national SMS regulation by States. The framework was developed on the basis of analysis of best industry practices, and developments in States, and the feedback from representatives of States through more than fifty-five SMS training courses delivered between May 2006 and November 2007. It consists of four basic components, subdivided into thirteen elements. At the centre of the framework are the two basic components of an SMS: safety risk management, proposed as an initial activity, and safety assurance, proposed as a continuous activity to ensure that the assumptions underlying the initial safety risk management remain valid and applicable, and/or to introduce changes as necessary. These two core activities take place under the umbrella provided by safety policy and objectives and are supported by safety promotion. The appendix includes a brief description of each component and element of the proposed framework. 8. Lastly, the proposal includes an attachment describing a framework for a State s safety programme to be included in Annex 11, and cross-referenced in Annexes 1, 6, Parts I and III, 8, 13 and 14, Volume I. The feedback received from States through the programme of SMS training courses indicates the need to develop guidance for States for the organization of their safety programmes, including the relationship with the State s safety oversight function. A brief discussion follows. 8.1 A State s safety oversight function is a part of a State s safety programme. The objectives of the State s safety oversight function are satisfied through administrative controls (inspections, audits and surveys) carried out regularly by civil aviation authorities. The critical elements of a State s safety oversight function do not, in themselves, constitute safety risk controls. The State s safety programme is necessary to turn the critical elements into safety risk controls. For example, a State s safety oversight function verifies that a State has a system of regulations, but neither requires a safety risk analysis to produce such regulations, nor does it monitor the effectiveness of regulations as safety risk controls. The State s safety programme, on the other hand, considers regulations as safety risk controls requiring, through its safety risk management component, that the process of rulemaking be done using principles of
- 3 - safety risk management (identify specific hazards, conduct risk analysis, develop rules that provide acceptable mitigation of the hazards effects), and monitoring, through its safety assurance component, the effectiveness and efficiency of regulations as safety risk controls. 8.2 Clear articulation of the difference between regulations as administrative controls and regulations as safety risk controls underlies the shift from prescriptive regulation to performance based regulation. The State s safety programme, as proposed in the framework, is a first enabling step in such a shift. Furthermore, the integration into the State s safety programme, as appropriate, of the principles underlying the role of the critical elements of a State s safety oversight function will yield a more robust and effective State safety programme. 9. The hazard addressed by both the SMS and the State s safety programme frameworks is the lack of standardization regarding the components of a service provider s SMS or a State s safety programme. The risk is the inability by States to organize their safety programmes or develop national regulations regarding SMS. The frameworks are proposed as mitigation strategy to this risk. 10. I would be grateful if you could include in your reply any information available within your State that may assist ICAO to assess the impact of the proposed amendment. As it is oftentimes the case with health, environmental and safety regulations, a cost-benefit analysis may not be possible. Nevertheless, a quantitative assessment of the impact of the proposed amendment in your State should be possible. I am therefore requesting your estimate regarding resources and procedures by your State as well as by industry that will be needed to ensure that the new provisions are developed, implemented and observed. 11. In examining the proposed amendment, you should not feel obliged to comment on editorial aspects as such matters will be addressed by the Air Navigation Commission during the final review of the draft amendment. 12. May I request that any comments you may wish to make on the proposed amendment be dispatched to reach me not later than 31 March 2008. The Air Navigation Commission has asked me to specifically indicate that comments received after the due date may not be considered by the Commission and the Council. In this connection, should you anticipate a delay in the receipt of your reply, please let me know in advance of the due date. 13. Considering that the proposed amendment involves further harmonization of existing provisions in Annexes 6, Parts I and III, Annex 11, Annex 13 and Annex 14, Volume I, the Commission envisages an applicability date for these Annexes of 19 November 2009. The Commission envisages a separate applicability date of 18 November 2010 for the proposed provisions in Annex 1 and Annex 8. Any comments you may have concerning the proposed applicability dates would be appreciated.
- 4-14. The subsequent work of the Air Navigation Commission and the Council would be greatly facilitated by specific statements on the acceptability or otherwise of the proposal. Please note that, for the review of your comments by the Air Navigation Commission and the Council, replies are normally classified as agreement with or without comments, disagreement with or without comments, or no indication of position. If in your reply the expressions no objections or no comments are used, they will be taken to mean agreement without comment and no indication of position, respectively. In order to facilitate proper classification of your response, a form has been included in Attachment G which may be completed and returned together with your comments, if any, on the proposals in Attachments A, B, C, D, E and F. Accept, Sir/Madam, the assurances of my highest consideration. Enclosures: A Proposed amendment to Annex 1 B Proposed amendment to Annex 6, Parts I and III C Proposed amendment to Annex 8 D Proposed amendment to Annex 11 E Proposed amendment to Annex 13 F Proposed amendment to Annex 14, Volume I G Response form Taïeb Chérif Secretary General
ATTACHMENT A to State letter AN 12/51-07/74 PROPOSED AMENDMENT TO INTERNATIONAL STANDARDS AND RECOMMENDED PRACTICES PERSONNEL LICENSING ANNEX 1 TO THE CONVENTION ON INTERNATIONAL CIVIL AVIATION NOTES ON THE PRESENTATION OF THE PROPOSED AMENDMENT The text of the amendment is arranged to show deleted text with a line through it and new text highlighted with grey shading, as shown below: 1. Text to be deleted is shown with a line through it. text to be deleted 2. New text to be inserted is highlighted with grey shading. new text to be inserted 3. Text to be deleted is shown with a line through it followed by the replacement text which is highlighted with grey shading. new text to replace existing text
A-2 CHAPTER 1. DEFINITIONS AND GENERAL RULES CONCERNING LICENSING 1.1 Definitions Safety management system. A systematic approach to managing safety, including the necessary organizational structures, accountabilities, policies and procedures. Safety programme. An integrated set of regulations and activities aimed at improving safety. 1.2.4 Medical fitness 1.2.4.2 Recommendation. States should apply, as part of their safety programme, basic safety management principles to the medical assessment process of license holders, that as a minimum include: a) routine collection and analysis of in-flight incapacitation events and medical findings during medical assessments to identify areas of increased medical risk; and b) continuous re-evaluation of the medical assessment process to concentrate on identified areas of increased medical risk. Note. A framework for the implementation and maintenance of a State s safety programme is contained in Attachment F to Annex 11. Guidance on safety programmes and safety management principles is contained in the Safety Management Manual (SMM) (Doc 9859) and the Manual of Civil Aviation Medicine (Doc 8984). 1.2.4.2 1.2.4.3 The period of validity of a Medical Assessment shall begin on the day the medical examination is performed. The duration of the period of validity shall be in accordance with the provisions of 1.2.5.2 Editorial note. Renumber subsequent paragraphs accordingly. 1.2.8 Approved training and approved training organization 1.2.8.2 The approval of a training organization by a State shall be dependent upon the applicant demonstrating compliance with the requirements of Appendix 2 and Appendix 4.
CHAPTER 6. A-3 MEDICAL PROVISIONS FOR LICENSING Note 6. Basic safety management principles, when applied to the medical assessment process, can help ensure that aero medical resources are utilized effectively. APPENDIX 2. APPROVED TRAINING ORGANIZATION (Chapter 1, 1.2.8.2 refers) 4. Safety management 4.1 States shall require, as part of their safety programmme, that an approved training organization that is exposed to operational safety risks during the provision of its services implement a safety management system acceptable to the State that, as a minimum: a) identifies safety hazards; b) ensures that remedial action necessary to maintain an acceptable level of safety is implemented; c) provides for continuous monitoring and regular assessment of the safety level achieved; and d) aims to make continuous improvement to the overall level of safety. 4.2 A safety management system shall clearly define lines of safety accountability throughout the approved training organization, including a direct accountability for safety on the part of senior management. Note 1. A framework for the implementation and maintenance of a State s safety programme is contained in Attachment F to Annex 11 Note 2. A framework for the implementation and maintenance of a safety management system is contained in Appendix 4. Guidance on safety management systems is contained in the Safety Management Manual (SMM) (Doc 9859). 4. 5. Quality assurance system Editorial note. Re-number subsequent paragraphs.
A-4 Insert new Appendix 4 as follows: APPENDIX 4. FRAMEWORK FOR SAFETY MANAGEMENT SYSTEMS (SMS) (Chapter 1, 1.2.8.2 refers) Introduction This appendix introduces a framework for the implementation and maintenance of a safety management system (SMS) by an approved training organization that is exposed to operational safety risks during the provision of its services. The framework consists of four components and thirteen elements, and its implementation shall be commensurate with the size of the organization and the complexity of the services provided. This appendix also includes a brief description of each element of the framework. 1. Safety policy and objectives 1.1 Management commitment and responsibility 1.2 Safety accountabilities of managers 1.3 Appointment of key safety personnel 1.4 SMS implementation plan 1.5 Coordination of emergency response planning 1.6 Documentation 2. Safety risk management 2.1 Hazard identification process 2.2 Risk assessment and mitigation process 3. Safety assurance 3.1 Safety performance monitoring and measurement 3.2 The management of change 3.3 Continuous improvement of the SMS 4. Safety promotion 4.1 Training and education 4.2 Safety communication 1. Safety policy and objectives 1.1 Management commitment and responsibility The approved training organization shall define the organization s safety policy which shall be in accordance with international and national requirements, and which shall be signed by the accountable executive of the organization. The safety policy shall reflect organizational commitments regarding safety; include a clear statement about the provision of the necessary human and financial resources for its implementation; and be communicated, with visible endorsement, throughout the organization. The safety policy shall be periodically reviewed to ensure it remains relevant and appropriate to the organization.
A-5 1.2 Safety accountabilities of managers The approved training organization shall identify the accountable executive who, irrespective of other functions, shall have ultimate responsibility and accountability, on behalf of the approved training organization, for the implementation and maintenance of the SMS. The approved training organization shall also identify the safety accountabilities of all members of senior management, irrespective of other functions. Safety accountabilities and authorities shall be documented and communicated throughout the organization. 1.3 Appointment of key safety personnel The approved training organization shall identify a safety manager to be the responsible individual and focal point for the implementation and maintenance of an effective SMS. 1.4 SMS implementation plan The approved training organization shall develop and maintain an SMS implementation plan that defines the organization s approach to manage safety in a manner that meets the organization s safety needs. The SMS implementation plan of the approved training organization shall explicitly address the coordination between the SMS of the approved training organization and the SMS of other organizations the approved training organization must interface with during the provision of services. The SMS implementation plan shall be endorsed by senior management of the organization. 1.5 Coordination of emergency response planning The approved training organization shall develop, coordinate and maintain an emergency response plan that ensures orderly and efficient transition from normal to emergency operations, and return to normal operations. 1.6 Documentation The approved training organization shall develop and maintain SMS documentation to describe the safety policy and objectives, the SMS requirements, the SMS procedures and processes, the accountabilities, responsibilities and authorities for procedures and processes, and the SMS outputs. As part of the SMS documentation, the approved training organization shall develop and maintain a safety management manual (SMM), to communicate its approach to safety throughout the organization. 2. Safety risk management 2.1 Hazard identification process The approved training organization shall develop and maintain a formal process for effectively collecting, recording, acting on and generating feedback about hazards in operations, based on a combination of reactive, proactive and predictive methods of safety data collection.
A-6 2.2 Risk assessment and mitigation process The approved training organization shall develop and maintain a formal risk management process that ensures analysis (in terms of probability and severity of occurrence), assessment (in terms of tolerability) and control (in terms of mitigation) of risks to an acceptable level. The approved training organization shall also define those levels of management with authority to make decisions regarding safety risks tolerability. 3. Safety assurance 3.1 Safety performance monitoring and measurement The approved training organization shall develop and maintain the means to verify the safety performance of the organization compared to the safety policy and objectives, and to validate the effectiveness of safety risks controls. The safety reporting procedures related to safety performance and monitoring shall clearly indicate which types of operational behaviours are acceptable or unacceptable, and include the conditions under which immunity from disciplinary action would be considered. 3.2 The management of change The approved training organization shall develop and maintain a formal process to identify changes within the organization which may affect established processes and services; to describe the arrangements to ensure safety performance before implementing changes; and to eliminate or modify safety risk controls that are no longer needed or effective due to changes in the operational environment. 3.3 Continuous improvement of the SMS The approved training organization shall develop and maintain a formal process to identify the causes of sub-standard performance of the SMS, determine the implications of sub-standard performance in operations, and eliminate such causes. 4. Safety promotion 4.1 Training and education The approved training organization shall develop and maintain a safety training programme that ensures that personnel are trained and competent to perform the SMS duties. The scope of the safety training shall be appropriate to each individual s involvement in the SMS.
A-7 4.2 Safety communication The approved training organization shall develop and maintain formal means for safety communication, that ensures that all personnel are fully aware of the SMS, conveys safety critical information, and explains why particular safety actions are taken and why safety procedures are introduced or changed. End of new text.
ATTACHMENT B to State letter AN 12/51-07/74 PROPOSED AMENDMENT TO INTERNATIONAL STANDARDS AND RECOMMENDED PRACTICES OPERATION OF AIRCRAFT ANNEX 6 TO THE CONVENTION ON INTERNATIONAL CIVIL AVIATION NOTES ON THE PRESENTATION OF THE PROPOSED AMENDMENT The text of the amendment is arranged to show deleted text with a line through it and new text highlighted with grey shading, as shown below: 1. Text to be deleted is shown with a line through it. text to be deleted 2. New text to be inserted is highlighted with grey shading. new text to be inserted 3. Text to be deleted is shown with a line through it followed by the replacement text which is highlighted with grey shading. new text to replace existing text
B-2 PART I INTERNATIONAL COMMERCIAL AIR TRANSPORT AEROPLANES CHAPTER 3. GENERAL 3.2 Safety management 3.2.2 The acceptable level(s) of safety to be achieved shall be established by the State(s) State concerned. Note. A framework for the implementation and maintenance of a State s safety programme is contained in Attachment F to Annex 11. Guidance on safety programmes is contained in the Safety Management Manual (SMM) (Doc 9859), and the definition of on defining acceptable levels of safety is contained in Attachment E to Annex 11. 3.2.5 A safety management system shall clearly define lines of safety accountability throughout the operator s organization, including a direct accountability for safety on the part of senior management. Note. A framework for the implementation and maintenance of a safety management system is contained in Appendix 6. Guidance on safety management systems is contained in the Safety Management Manual (SMM) (Doc 9859). CHAPTER 8. AEROPLANE MAINTENANCE 8.7 Approved maintenance organization 8.7.3 Safety management 8.7.3.2 The acceptable level(s) of safety to be achieved shall be established by the State(s) State concerned. Note. A framework for the implementation and maintenance of a State s safety programme is contained in Attachment F to Annex 11. Guidance on safety programmes and on defining acceptable levels of safety is contained in the Safety Management Manual (SMM) (Doc 9859), and on defining acceptable levels of safety in Attachment E to Annex 11 and in the Safety Management Manual (SMM) (Doc 9859). 8.7.3.5 A safety management system shall clearly define lines of safety accountability throughout a maintenance organization, including a direct accountability for safety on the part of senior management. Note. A framework for the implementation and maintenance of a safety management system is
B-3 contained in Appendix 6. Guidance on safety management systems is contained in the Safety Management Manual (SMM) (Doc 9859). APPENDIX 2. ORGANIZATION AND CONTENTS OF AN OPERATIONS MANUAL (See Chapter 4, 4.2.2.1) 2. Contents 2.1.34 Details of the accident prevention and flight safety programme safety management system (SMS) provided in accordance with Chapter 3, 3.2, including a statement of safety policy and the responsibility of personnel. Insert new Appendix 6 as follows: APPENDIX 6. FRAMEWORK FOR SAFETY MANAGEMENT SYSTEMS (SMS) (See Chapter 3, 3.2.5, and Chapter 8, 8.7.3.5) Introduction This appendix introduces a framework for the implementation and maintenance of a safety management system (SMS) by an operator or an approved maintenance organization. The framework consists of four components and thirteen elements, and its implementation shall be commensurate with the size of the organization and the complexity of the services provided. This appendix also includes a brief description of each element of the framework. 1. Safety policy and objectives 1.1 Management commitment and responsibility 1.2 Safety accountabilities of managers 1.3 Appointment of key safety personnel 1.4 SMS implementation plan 1.5 Coordination of emergency response planning 1.6 Documentation 2. Safety risk management 2.1 Hazard identification process 2.2 Risk assessment and mitigation process 3. Safety assurance 3.1 Safety performance monitoring and measurement 3.2 The management of change 3.3 Continuous improvement of the SMS
B-4 4. Safety promotion 4.1 Training and education 4.2 Safety communication 1. Safety policy and objectives 1.1 Management commitment and responsibility The operator/approved maintenance organization shall define the organization s safety policy which shall be in accordance with international and national requirements, and which shall be signed by the accountable executive of the organization. The safety policy shall reflect organizational commitments regarding safety; include a clear statement about the provision of the necessary human and financial resources for its implementation; and be communicated, with visible endorsement, throughout the organization. The safety policy shall be periodically reviewed to ensure it remains relevant and appropriate to the organization. 1.2 Safety accountabilities of managers The operator/approved maintenance organization shall identify the accountable executive who, irrespective of other functions, shall have ultimate responsibility and accountability, on behalf of the operator/approved maintenance organization, for the implementation and maintenance of the SMS. The operator/approved maintenance organization shall also identify the safety accountabilities of all members of senior management, irrespective of other functions. Safety accountabilities and authorities shall be documented and communicated throughout the organization. 1.3 Appointment of key safety personnel The operator/approved maintenance organization shall identify a safety manager to be the responsible individual and focal point for the implementation and maintenance of an effective SMS. 1.4 SMS implementation plan The operator/approved maintenance organization shall develop and maintain an SMS implementation plan that defines the organization s approach to manage safety in a manner that meets the organization s safety needs. The SMS implementation plan of the operator/approved maintenance organization shall explicitly address the coordination between the SMS of the operator/approved maintenance organization and the SMS of other organizations the operator/approved maintenance organization must interface with during the provision of services. The SMS implementation plan shall be endorsed by senior management of the organization. 1.5 Coordination of emergency response planning The operator/approved maintenance organization shall develop, coordinate and maintain an emergency response plan that ensures orderly and efficient transition from normal to emergency operations, and return to normal operations.
B-5 1.6 Documentation The operator/approved maintenance organization shall develop and maintain SMS documentation to describe the safety policy and objectives, the SMS requirements, the SMS procedures and processes, the accountabilities, responsibilities and authorities for procedures and processes, and the SMS outputs. As part of the SMS documentation, the operator/approved maintenance organization shall develop and maintain a safety management manual (SMM), to communicate its approach to safety throughout the organization. 2. Safety risk management 2.1 Hazard identification process The operator/approved maintenance organization shall develop and maintain a formal process for effectively collecting, recording, acting on and generating feedback about hazards in operations, based on a combination of reactive, proactive and predictive methods of safety data collection. 2.2 Risk assessment and mitigation process The operator/approved maintenance organization shall develop and maintain a formal risk management process that ensures analysis (in terms of probability and severity of occurrence), assessment (in terms of tolerability) and control (in terms of mitigation) of risks to an acceptable level. The operator/approved maintenance shall also define those levels of management with authority to make decisions regarding safety risks tolerability. 3. Safety assurance 3.1 Safety performance monitoring and measurement The operator/approved maintenance organization shall develop and maintain the means to verify the safety performance of the organization compared to the safety policy and objectives, and to validate the effectiveness of safety risks controls. The safety reporting procedures related to safety performance and monitoring shall clearly indicate which types of operational behaviours are acceptable or unacceptable, and include the conditions under which immunity from disciplinary action would be considered. 3.2 The management of change The operator/approved maintenance organization shall develop and maintain a formal process to identify changes within the organization which may affect established processes and services; to describe the arrangements to ensure safety performance before implementing changes; and to eliminate or modify safety risk controls that are no longer needed or effective due to changes in the operational environment.
B-6 3.3 Continuous improvement of the SMS The operator/approved maintenance organization shall develop and maintain a formal process to identify the causes of sub-standard performance of the SMS, determine the implications of sub-standard performance in operations, and eliminate such causes. 4. Safety promotion 4.1 Training and education The operator/approved maintenance organization shall develop and maintain a safety training programme that ensures that personnel are trained and competent to perform the SMS duties. The scope of the safety training shall be appropriate to each individual s involvement in the SMS. 4.2 Safety communication The operator/approved maintenance organization shall develop and maintain formal means for safety communication, that ensures that all personnel are fully aware of the SMS; conveys safety critical information; and explains why particular safety actions are taken and why safety procedures are introduced or changed. End of new text.
B-7 PART III INTERNATIONAL OPERATIONS HELICOPTERS SECTION II INTERNATIONAL COMMERCIAL AIR TRANSPORT CHAPTER 1. GENERAL 1.1.9 An operator shall establish and maintain an accident prevention and flight safety programme. Note. Guidance on accident prevention is contained in the Accident Prevention Manual (Doc 9422) and in the Preparation of an Operations Manual (Doc 9376). 1.1.10 Recommendation. An operator of a helicopter of a certificated take-off mass in excess of 7 000 kg or having a passenger seating configuration of more than 9 and fitted with a flight data recorder should establish and maintain a flight data analysis programme as part of its accident prevention and flight safety programme. Note. An operator may contract the operation of a flight data analysis programme to another party while retaining overall responsibility for the maintenance of such a programme. 1.1.11 Any flight data analysis programme shall be non-punitive and contain adequate safeguards to protect the source(s) of the data. 1.2 Safety management 1.2.2 The acceptable level(s) of safety to be achieved shall be established by the State(s) State concerned. Note. A framework for the implementation and maintenance of a State s safety programme is contained in Attachment F to Annex 11. Guidance on safety programmes is contained in the Safety Management Manual (SMM) (Doc 9859), and the definition of on defining acceptable levels of safety is contained in Attachment E to Annex 11. 1.2.5 A safety management system shall clearly define lines of safety accountability throughout the operator s organization, including a direct accountability for safety on the part of senior management. Note. A framework for the implementation and maintenance of a safety management system is contained in Appendix 3. Guidance on safety management systems is contained in the Safety Management Manual (SMM) (Doc 9859). 1.2.6 Recommendation. An operator of a helicopter of a certified take-off mass in excess of 7 000 kg or having a passenger seating configuration of more than 9 and fitted with a flight data recorder should establish and maintain a flight data analysis programme as part of its safety management system. Note. An operator may contract the operation of a flight data analysis programme to another party while retaining overall responsibility for the maintenance of such a programme.
B-8 1.2.7 A flight data analysis programme shall be non-punitive and contain adequate safeguards to protect the source(s) of the data. Note 1. Guidance on flight data analysis programmes is contained in the Safety Management Manual (SMM) (Doc 9858). Note 2. Legal guidance for the protection of information from safety data collection and processing systems is contained in Annex 13, Attachment E. 1.2.6 1.2.8 An operator shall establish a flight safety documents system, for the use and guidance of operational personnel, as part of its safety management system. CHAPTER 6. HELICOPTER MAINTENANCE 6.2 Safety management 6.2.1 States shall establish a safety programme, in order to achieve an acceptable level of safety in helicopter maintenance operations. 6.2.2 The acceptable level(s) of safety to be achieved shall be established by the State concerned. Note. A framework for the implementation and maintenance of a State s safety programme is contained in Attachment F to Annex 11. Guidance on safety programmes is contained in the Safety Management Manual (SMM) (Doc 9859), and on defining acceptable levels of safety in Attachment E to Annex 11. 6.2.3 States shall require, as part of their safety programme, that an operator implement a safety management system acceptable to the State that, as a minimum: a) identifies safety hazards; b) ensures that remedial action necessary to maintain an acceptable level of safety is implemented; c) provides for continuous monitoring and regular assessment of the safety level achieved; and d) aims to make continuous improvement to the overall level of safety. 6.2.4 A safety management system shall clearly define lines of safety accountability throughout an operator s organization, including a direct accountability for safety on the part of senior management. Note. A framework for the implementation and maintenance of a safety management system is contained in Appendix 3. Guidance on safety management systems is contained in the Safety Management Manual (SMM) (Doc 9859).
B-9 6.2 6.3 Operator s maintenance control manual Editorial note. Re-number subsequent paragraphs accordingly. Insert new Appendix 3 as follows: APPENDIX 3. FRAMEWORK FOR SAFETY MANAGEMENT SYSTEMS (SMS) (See Section II, Chapter 1, 1.2.5, and Chapter 6, 6.2.4) Introduction This appendix introduces a framework for the implementation and maintenance of a safety management system (SMS) by a helicopter operator/approved maintenance organization. The framework consists of four components and thirteen elements, and its implementation shall be commensurate with the size of the organization and the complexity of the services provided. This appendix also includes a brief description of each element of the framework. 1. Safety policy and objectives 1.1 Management commitment and responsibility 1.2 Safety accountabilities of managers 1.3 Appointment of key safety personnel 1.4 SMS implementation plan 1.5 Coordination of emergency response planning 1.6 Documentation 2. Safety risk management 2.1 Hazard identification process 2.2 Risk assessment and mitigation process 3. Safety assurance 3.1 Safety performance monitoring and measurement 3.2 The management of change 3.3 Continuous improvement of the SMS 4. Safety promotion 4.1 Training and education 4.2 Safety communication
B-10 1. Safety policy and objectives 1.1 Management commitment and responsibility The helicopter operator/approved maintenance organization shall define the organization s safety policy which shall be in accordance with international and national requirements, and which shall be signed by the accountable executive of the organization. The safety policy shall reflect organizational commitments regarding safety; include a clear statement about the provision of the necessary human and financial resources for its implementation; and be communicated, with visible endorsement, throughout the organization. The safety policy shall be periodically reviewed to ensure it remains relevant and appropriate to the organization. 1.2 Safety accountabilities of managers The helicopter operator/approved maintenance organization shall identify the accountable executive who, irrespective of other functions, shall have ultimate responsibility and accountability, on behalf of the helicopter operator/approved maintenance organization, for the implementation and maintenance of the SMS. The helicopter operator/approved maintenance organization shall also identify the safety accountabilities of all members of senior management, irrespective of other functions. Safety accountabilities and authorities shall be documented and communicated throughout the organization. 1.3 Appointment of key safety personnel The helicopter operator/approved maintenance organization shall identify a safety manager to be the responsible individual and focal point for the implementation and maintenance of an effective SMS. 1.4 SMS implementation plan The helicopter operator/approved maintenance organization shall develop and maintain an SMS implementation plan that defines the organization s approach to manage safety in a manner that meets the organization s safety needs. The SMS implementation plan of the helicopter operator/approved maintenance organization shall explicitly address the coordination between the SMS of the helicopter operator/approved maintenance organization and the SMS of the other organizations the helicopter operator/approved maintenance organization must interface with during the provision of services. The SMS implementation plan shall be endorsed by senior management of the organization. 1.5 Coordination of emergency response planning The helicopter operator/approved maintenance organization shall develop, maintain and coordinate an emergency response plan that ensures orderly and efficient transition from normal to emergency operations, and return to normal operations. 1.6 Documentation The helicopter operator/approved maintenance organization shall develop and maintain SMS documentation to describe the safety policy and objectives, the SMS requirements, the SMS procedures and processes, the accountabilities, responsibilities and authorities for procedures and processes, and the
B-11 SMS outputs. As part of the SMS documentation, the helicopter operator/approved maintenance organization shall develop and maintain a safety management manual (SMM), to communicate its approach to safety throughout the organization. 2. Safety risk management 2.1 Hazard identification process The helicopter operator/approved maintenance organization shall develop and maintain a formal process for effectively collecting, recording, acting on and generating feedback about hazards in operations, based on a combination of reactive, proactive and predictive methods of safety data collection. 2.2 Risk assessment and mitigation process The helicopter operator/approved maintenance organization shall develop and maintain a formal risk management process that ensures analysis (in terms of probability and severity of occurrence), assessment (in terms of tolerability) and control (in terms of mitigation) of risks to an acceptable level. The helicopter operator/approved maintenance organization shall also define those levels of management with authority to make decisions regarding safety risks tolerability. 3. Safety assurance 3.1 Safety performance monitoring and measurement The helicopter operator/approved maintenance organization shall develop and maintain the means to verify the safety performance of the organization compared to the safety policy and objectives, and to validate the effectiveness of safety risks controls. The safety reporting procedures related to safety performance and monitoring shall clearly indicate which types of operational behaviours are acceptable or unacceptable, and include the conditions under which immunity from disciplinary action would be considered. 3.2 The management of change The helicopter operator/approved maintenance organization shall develop and maintain a formal process to identify changes within the organization which may affect established processes and services; to describe the arrangements to ensure safety performance before implementing changes; and to eliminate or modify safety risk controls that are no longer needed or effective due to changes in the operational environment. 3.3 Continuous improvement of the SMS The helicopter operator/approved maintenance organization shall develop and maintain a formal process to identify the causes of sub-standard performance of the SMS, determine the implications of sub-standard performance in operations, and eliminate such causes.
B-12 4. Safety promotion 4.1 Training and education The helicopter operator/approved maintenance organization shall develop and maintain a safety training programme that ensures that personnel are trained and competent to perform the SMS duties. The scope of the safety training shall be appropriate to each individual s involvement in the SMS. 4.2 Safety communication The helicopter operator/approved maintenance organization shall develop and maintain formal means for safety communication, that ensures that all personnel are fully aware of the SMS; conveys safety critical information; and explains why particular safety actions are taken and why safety procedures are introduced or changed. End of new text. ATTACHMENT H. CONTENTS OF AN OPERATIONS MANUAL Supplementary to Section II, Chapter 2, 2.2.2.1 2. Contents 2.1 General 2.1.27 Details of the accident prevention and flight safety programme safety management system (SMS) provided in accordance with Section II, Chapter 1, 1.1.9, including a statement of safety policy and the responsibility of personnel.
ATTACHMENT C to State letter AN 12/51-07/74 PROPOSED AMENDMENT TO INTERNATIONAL STANDARDS AND RECOMMENDED PRACTICES AIRWORTHINESS OF AIRCRAFT ANNEX 8 TO THE CONVENTION ON INTERNATIONAL CIVIL AVIATION NOTES ON THE PRESENTATION OF THE PROPOSED AMENDMENT The text of the amendment is arranged to show deleted text with a line through it and new text highlighted with grey shading, as shown below: 1. Text to be deleted is shown with a line through it. text to be deleted 2. New text to be inserted is highlighted with grey shading. new text to be inserted 3. Text to be deleted is shown with a line through it followed by the replacement text which is highlighted with grey shading. new text to replace existing text
C-2 PART I DEFINITIONS Safety management system. A systematic approach to managing safety, including the necessary organizational structures, accountabilities, policies and procedures. Safety programme. An integrated set of regulations and activities aimed at improving safety. PART II. PROCEDURES FOR CERTIFICATION AND CONTINUING AIRWORTHINESS Insert new Chapter 5 as follows: CHAPTER 5. SAFETY MANAGEMENT 5.1 States shall establish a safety programme, in order to achieve an acceptable level of safety in the certification and continuing airworthiness of aircraft. 5.2 The acceptable level(s) of safety to be achieved shall be established by the State concerned. Note. A framework for the implementation and maintenance of a State s safety programme is contained in Attachment F to Annex 11. Guidance on safety programmes is contained in the Safety Management Manual (SMM) (Doc 9859), and on defining acceptable levels of safety in Attachment E to Annex 11. 5.3 States shall require, as part of their safety programme, that an organization responsible for the type design or final assembly of an aircraft implement a safety management system acceptable to the State concerned that, as a minimum: a) identifies safety hazards; b) ensures that remedial action necessary to maintain an acceptable level of safety is implemented; c) provides for continuous monitoring and regular assessment of the safety level achieved; and d) aims to make continuous improvement to the overall level of safety. 5.4 A safety management system shall clearly define lines of safety accountability throughout the type design or final assembly organization, including a direct accountability for safety on the part of senior management. Note. A framework for the implementation and maintenance of a safety management system is contained in the Appendix. Guidance on safety management systems is contained in the Safety Management Manual (SMM) (Doc 9859). End of new text.
C-3 Insert new Appendix as follows: APPENDIX FRAMEWORK FOR SAFETY MANAGEMENT SYSTEMS (SMS) (See Part II, Chapter 5, 5.4) Introduction This appendix introduces a framework for the implementation and maintenance of a safety management system (SMS) by an organization responsible for the type design or final assembly of an aircraft. The framework consists of four components and thirteen elements, and its implementation shall be commensurate with the size of the organization and the complexity of the services provided. This appendix also includes a brief description of each element of the framework. 1. Safety policy and objectives 1.1 Management commitment and responsibility 1.2 Safety accountabilities of managers 1.3 Appointment of key safety personnel 1.4 SMS implementation plan 1.5 Coordination of emergency response planning 1.6 Documentation 2. Safety risk management 2.1 Hazard identification process 2.2 Risk assessment and mitigation process 3. Safety assurance 3.1 Safety performance monitoring and measurement 3.2 The management of change 3.3 Continuous improvement of the SMS 4. Safety promotion 4.1 Training and education 4.2 Safety communication 1. Safety policy and objectives 1.1 Management commitment and responsibility The organization responsible for the type design or final assembly of aircraft shall define the organization s safety policy which shall be in accordance with international and national requirements, and which shall be signed by the accountable executive of the organization. The safety policy shall reflect organizational commitments regarding safety; include a clear statement about the provision of the necessary human and financial resources for its implementation; and be communicated, with visible endorsement, throughout the organization. The safety policy shall be periodically reviewed to ensure it
remains relevant and appropriate to the organization. C-4 1.2 Safety accountabilities of managers The organization responsible for the type design or final assembly of aircraft shall identify an accountable executive who, irrespective of other functions, shall have ultimate responsibility and accountability, on behalf of the organization responsible for the type design or final assembly of aircraft, for the implementation and maintenance of the SMS. The organization responsible for the type design or final assembly of aircraft shall also identify the safety accountabilities of all members of senior management, irrespective of other functions. Safety accountabilities and authorities shall be documented and communicated throughout the organization. 1.3 Appointment of key safety personnel The organization responsible for the type design or final assembly of aircraft shall identify a safety manager to be the responsible individual and focal point for the implementation and maintenance of an effective SMS. 1.4 SMS implementation plan The organization responsible for the type design or final assembly of aircraft shall develop and maintain an SMS implementation plan that defines the organization s approach to manage safety in a manner that meets the organization s safety needs. The SMS implementation plan of the organization responsible for the type design or final assembly of aircraft shall explicitly address the coordination of the SMS of the organization responsible for the type design or final assembly of aircraft and the SMS of other organizations the organization responsible for the type design or final assembly of aircraft must interface with during the provision of services. The SMS implementation plan shall be endorsed by senior management of the organization. 1.5 Coordination of emergency response planning The organization responsible for the type design or final assembly of aircraft shall develop, coordinate and maintain an emergency response plan that ensures orderly and efficient transition from normal to emergency operations, and return to normal operations. 1.6 Documentation The organization responsible for the type design or final assembly of aircraft shall develop and maintain SMS documentation to describe the safety policy and objectives, the SMS requirements, the SMS procedures and processes, the accountabilities, responsibilities and authorities for procedures and processes, and the SMS outputs. As part of the SMS documentation, the organization responsible for the type design or final assembly of aircraft shall develop and maintain a safety management manual (SMM), to communicate its approach to safety throughout the organization.